CASE NUMBER: 17SN0737 APPLICANT: Chesterfield Department of Emergency Communications CHESTERFIELD COUNTY, VIRGINIA MIDLOTHIAN DISTRICT

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1 CASE NUMBER: 17SN0737 APPLICANT: Chesterfield Department of Emergency Communications CHESTERFIELD COUNTY, VIRGINIA MIDLOTHIAN DISTRICT ADDENDUM Board of Supervisors Hearing: APRIL 26, 2017 Board of Supervisors Time Remaining: 365 DAYS Applicant s Agent: HEATHER RUBINSTEIN ( ) Applicant s Contact: RICH TROSHAK ( ) Planning Department Case Manager: DARLA ORR ( ) 4.5 Acres 3600 James River Road REQUEST Amendment of Conditional Use Planned Development (Case 99SN0158) to increase the height of an approved communications tower in a Residential (R-40) Zoning District. Specifically, the applicant proposes to amend the Proffered Condition to increase the tower height from 199 feet to 310 feet. Notes: A. Conditions may be imposed or the property owner may proffer conditions. B. Condition 5 and modified location and site plans are located in Attachments 1 and 2 C. Under the Federal Telecommunications Act, localities cannot regulate cell towers on the basis of possible health or environmental effects of radio frequency emissions. SUMMARY A 310-foot tall communications tower to expand the County s existing Public Safety Emergency Communications Radio System is planned on county-owned property within Robious Landing Park. ADDENDUM The purpose of this Addendum is to provide: Planning Commission s recommendation; an additional condition; modified location and site plans; and clarification on dish antenna. Commission Recommendation: On April 18, 2017, Commission voted unanimously to recommend approval of this request subject to the four (4) conditions in the staff report and Condition 5 included in this Addendum. (Attachment 1) Additional Condition In response to concerns expressed by area citizens and the Midlothian District Commissioner, Condition 5, acceptable to the applicant, is recommended which would prohibit antenna of users other than the applicant to be located on the tower. Modified Location and Site Plan To avoid impact on the flood plain which has been confirmed in areas north and west of the existing building, the applicant plans to move the tower compound south of the building. Modified location and site plans are located in Attachment 2. Diameter of Dish Antenna - As noted in the staff report, the Telecommunications Tower Siting Policy offers guidelines to use in consideration of tower locations. The Policy suggests that dish antennas not exceed 6-feet in diameter. In this case, dish antennas with a maximum diameter of 8- feet would be permitted. Staff finds the visual impact of a 2-foot difference in diameter would be negligible given the location and height of the proposed tower. Providing a FIRST CHOICE community through excellence in public service

2 ADDENDUM (Continued) Staff continues to recommend approval of this request subject to the conditions provided in the staff report for the reasons outlined below. COMMISSION APPROVAL RECOMMENDATIONS STAFF APPROVAL Improved transmission of public safety communications benefits the health and safety of citizens and public safety personnel Proposed increased height is needed to enhance public safety communications The Comprehensive Plan encourages co-location of the County s public facilities with existing facility sites While completely minimizing the visual impact of the tower is not feasible, existing and proposed conditions will assist in mitigating the visual impact on area residential use Department PARKS AND RECREATION SUMMARY OF IDENTIFIED ISSUES Issue A recommended route of the Bike and Trails Chapter of The Comprehensive Plan runs through the property; however, the proposed development area for the tower is a small portion of the parcel. The applicant has not offered to address the impacts on pedestrian/bicycle facilities along the Plan route. 2 17SN APR26-BOS-ADD

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4 CASE HISTORY Applicant Submittals 11/15/2016 Application submitted 4/5/2017 Applicant submitted document relative to coverage design Community Meeting 1/31/2017 Discussion: Review of proposed emergency communications system enhancements and its benefits Increase planned for Robious site from 199 to 310 feet Propose to begin construction in June, with 6-month construction period A repeater is in high school to assist with radio coverage Taller tower needed to connect microwave paths for new system; terrain is an issue in this area System will be looped for reliability Current equipment outdated; system will no longer receive maintenance support Concern property will not become site for multiple towers Room will be available on tower for 4 private communications service providers Concern taller tower will need to lit; discussed lighting per conditions of existing zoning, unless otherwise required by FAA Other sites considered for the tower or other towers so as not to increase the height of the approved tower; existing area towers cannot handle additional load of new equipment Visibility from area homes and from Tuckahoe Plantation Frequency of operation of diesel generators; once a week during normal business hours unless needed for power outage Size of dish antenna Possible shortening of tower with use of repeaters to provide coverage Planning Commission 2/21/2017 Action DEFERRED TO APRIL 18, 2017 ON THEIR OWN MOTION WITH THE APPLICANT S CONSENT. 4/18/2017 Citizen Comments: Questioned need for tower since tower approved in 1999 has not been built Other sites may be more appropriate Taller tower would need to be lit Effects of tower on park use Co-location of antenna by other users should not be permitted Commission Discussion: Mr. Jones stated ensuring the safety of citizens and public safety personnel is important. He noted that he and Mrs. Haley asked the applicant s engineers to determine if a shorter tower or a different tower location would meet the communication needs, but found no other viable options. He stated 4 17SN APR26-BOS-ADD

5 Planning Commission (Continued) Commission Discussion (Continued): that given changes in federal law (which may require 50-foot tall towers to be lit), the 199-foot tower permitted by the existing zoning may have required lighting. He added that newly proposed Condition 5 would not permit colocation of antenna by other users on the tower. Mr. Sloan and Dr. Wallin thanked the applicant for providing additional information regarding coverage design. Recommendation - APPROVAL SUBJECT TO THE FOUR (4) CONDITIONS IN ATTACHMENT 1 OF STAFF S REPORT AND CONDITION 5 INCLUDED IN THIS ADDENDUM (ATTACHMENT 1) Motion: Wallin Second: Freye AYES: Sloan, Jackson, Freye, Jones and Wallin The Board of Supervisors on Wednesday, April 26, 2017, beginning at 6:00 p.m., will consider this request. 5 17SN APR26-BOS-ADD

6 CONDITION 5 ATTACHMENT 1 5. The tower shall only be used for Public Safety Emergency Communication purposes. Co-location of antenna by other users shall not be permitted. (P) 6 17SN APR26-BOS-ADD

7 SITE LOCATION AND SITE PLANS ATTACHMENT SN APR26-BOS-ADD

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9 CASE NUMBER: 17SN0737 APPLICANT: Chesterfield Department of Emergency Communications CHESTERFIELD COUNTY, VIRGINIA MIDLOTHIAN DISTRICT STAFF S ANALYSIS AND RECOMMENDATION Board of Supervisors Hearing: APRIL 26, 2017 Board of Supervisors Time Remaining: 365 DAYS Applicant s Agent: HEATHER RUBINSTEIN ( ) Applicant s Contact: RICH TROSHAK ( ) Planning Department Case Manager: DARLA ORR ( ) 4.5 Acres 3600 James River Road REQUEST Amendment of Conditional Use Planned Development (Case 99SN0158) to increase the height of an approved communications tower in a Residential (R-40) Zoning District. Specifically, the applicant proposes to amend the Proffered Condition to increase the tower height from 199 feet to 310 feet. Notes: A. Conditions may be imposed or the property owner may proffer conditions. B. Conditions, site layout, tower elevation, Coverage Design Response and existing zoning conditions are located in Attachments 1-5 C. Under the Federal Telecommunications Act, localities cannot regulate cell towers on the basis of possible health or environmental effects of radio frequency emissions. SUMMARY A 310-foot tall communications tower to expand the County s existing Public Safety Emergency Communications Radio System and permit colocation of private communication services is planned on county-owned property within Robious Landing Park. COMMISSION STAFF RECOMMENDATION STAFF WILL ADVISE THE BOARD OF THE COMMISSION S RECOMMENDATION AFTER THEIR MEETING ON APRIL 18, 2017 APPROVAL Improved transmission of public safety communications benefits the health and safety of citizens and public safety personnel Proposed increased height is needed to enhance public safety communications and would provide space for co-location of private communications services; thereby, reducing the need for new towers in the area. The Comprehensive Plan encourages co-location of the County s public facilities with existing facility sites While completely minimizing the visual impact of the tower is not feasible, existing and proposed conditions will assist in mitigating the visual impact on area residential use Providing a FIRST CHOICE community through excellence in public service

10 Department PARKS AND RECREATION SUMMARY OF IDENTIFIED ISSUES Issue A recommended route of the Bike and Trails Chapter of The Comprehensive Plan runs through the property; however, the proposed development area for the tower is a small portion of the parcel. The applicant has not offered to address the impacts on pedestrian/bicycle facilities along the Plan route. 2 17SN APR26-BOS-RPT

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12 Map 2: Comprehensive Plan Classification: CONSERVATION RECREATION This designation is given to publicly and privately owned properties including schools, parklands, and other public and private lands for promoting its function, natural characer or historical significance. Map 3: Surrounding Land Uses & Development James River Road Robious Landing Park County school athletic fields and utility use or vacant 4 17SN APR26-BOS-RPT

13 Zoning History PLANNING Staff Contact: Darla Orr ( ) Case Number BOS Action Request Conditional Use Planned Development and Substantial Accord Determination to permit a 199-foot communications tower to serve the County s emergency communications system Approved conditions: 99SN0158 and 99PD0168 Approved (12/1998) o Require 100-foot buffer around request site, security fencing, and treatment and screening of ground equipment o Prohibit signs and lighting unless required by FAA. If lighting is required, medium intensity strobe lights with upward reflection would be used during the day and soft blinking lights at night o Require tower to be gray or neutral color and address cessation o Permits co-location by private communication service providers Proposal The applicant proposes to increase the height of the tower approved in 1998 from 199 feet to 310 feet (Condition 1). The tower will be one (1) of six (6) new towers to complete an expansion of the County s Public Safety Emergency Communications Radio System. The existing system is being enhanced as part of a regional project to meet the long-term public safety needs. The proposed tower is designed to provide enhanced interoperability, redundancy, and improved frequency coverage. The applicant s representative has indicated that the increased tower height is necessary to reduce the number of tower facilities needed to provide the radio coverage proposed and to increase the ability for the signal to penetrate larger structures such as James River High School and other larger commercial, office and industrial facilities, and government buildings. Public Facilities Plan The Public Facilities Plan, an element of The Comprehensive Plan, suggests public facilities should be co-located whenever possible with existing public facility sites. The Plan suggests telecommunications facilities should be designed and located to provide broad access to communication services and minimize the numbers of towers and their impact on the surrounding area. The Plan encourages co-location on existing telecommunications towers, or architectural incorporation into existing building features. Where co-location or architectural incorporation is not feasible, the Plan suggests that in highly visible areas, towers should be located and 5 17SN APR26-BOS-RPT

14 designed to conceal such facilities to the greatest degree feasible to minimize their visual impact. The visual presence should be minimized by: Maintaining natural features (such as topography or mature forested areas) Obscuring or blocking views with other existing structures Using stealth designs to disguise and camouflage the appearance or, when this is not feasible, using a monopole design Tower Siting Policy The Policy establishes guidelines for design, setbacks and security. The Policy elements: Discourage sectored arrays in residential areas Limit size of satellite and microwave dish antennas Require certification of structural integrity Require setbacks from existing off-site dwellings, and public rights-of-way (not withstanding Ordinance setback requirements) Prohibit signs, except as required by state or federal guidelines Require security fencing to preclude trespassing Provide for screening of tower base and ground mounted equipment The existing zoning was approved prior to the most recent update to the County s Public Facilities Plan and Tower Siting Policy. The approved conditions of Case 99SN0158 address suggestions of the current Plan and Policy, except that case did not address some tower design issues. The applicant is agreeable to the additional conditions below, as recommended by staff, to further comply with current Plan and Policy recommendations: Requirements Tower Design & Integrity/Opportunities for Future Users General Overview Details Self-supporting lattice tower Tower to be designed to handle 4 additional communications service providers Engineer s report required to certify structural integrity of the tower Microwave or satellite dish antennas maximum of 8 feet in diameter, neutral color, and with no logos Conditions 2 thru 4 and Policy 6 17SN APR26-BOS-RPT

15 With existing and proposed conditions, the communications tower at the increased height complies with The Comprehensive Plan and is consistent with the Telecommunications Tower Siting Policy criteria as outlined below: Is co-located with a county park facility Includes recommended tower design elements: neutral color; no signs or logos permitted; and limit on size of dish antennas Is a self-supporting lattice tower, similar to a monopole because guy wires are not required (A monopole cannot be used due to the height of the proposed tower.) Is designed to offer co-location opportunities for additional communications service providers thereby reducing the need for additional towers in the area Will provide an Engineer s report to certify structural integrity of the tower Provides for security and screening of the base of the tower, including vegetation retention Addresses cessation Given the requested increase in height to 310 feet, the tower will be more visible and required to be lit; however, the proposed tower has been designed to reduce the visual impact to the greatest degree feasible without compromising the planned emergency radio system expansion which benefits the health and safety of citizens and public safety personnel. 7 17SN APR26-BOS-RPT

16 FIRE SERVICE Staff Contact: Anthony Batten ( ) This request will have minimal impact on Fire and EMS. Nearby Fire and Emergency Medical Service (EMS) Facilities Fire Station The Bon Air Fire Station, Company Number 4 EMS Facility The Bon Air Fire Station, Company Number 4 ENVIRONMENTAL Drainage, Erosion and Water Quality Staff Contact: Rebeccah Ward ( ) wardr@chesterfield.gov Geography The proposed tower site is located at the James River High School campus. The area drains to the north through Robious Landing Park directly to the James River. The entire property is located within the James River Watershed. Environmental Features There are wetlands, Resource Protection Area, and 100-year floodplain within the proximity of the proposed tower site. A Resource Protection Area Designation (RPAD) must be submitted and approved by the Department of Environmental Engineering-Water Quality Section prior to site plan approval. In addition, wetlands shall not be impacted without approval from the US Army Corps of Engineers. Stormwater Management The development is subject to the Part IIB technical criteria of the Virginia Stormwater Management Program Regulations for water quality and water quantity. 8 17SN APR26-BOS-RPT

17 PARKS AND RECREATION Staff Contact: Stuart Connock ( ) Mission The County supports a high-quality park system to provide residents and visitors with equitable access to active and passive recreation opportunities. The 2012 level of service is 5.9 acres of regional, community and neighborhood parkland per 1,000 persons whereas the target level of service is 9 acres per 1,000 persons. Public Facilities Plan The Public Facilities Plan identifies the need for one Community Park, consisting of approximately 90 acres, nearest this location. Land for this community park has not been acquired. The Bikeways and Trails Chapter of the Comprehensive Plan recommends provision of pedestrian/bicycle facilities along all routes shown on the Plan and connections from these routes and existing pedestrian/bicycle facilities to adjacent developments. In this case, a recommended route of the Plan runs through the property; however, the proposed development area for the tower is a small portion of the parcel. The applicant has not offered to address the impacts on pedestrian/bicycle facilities along the Plan route. Existing Parkland The proposed tower will be located within the Robious Landing Park. The proposed taller tower has been coordinated with Parks and Recreation to ensure no adverse effects to current park operations or proposed future development on the property. COUNTY DEPARTMENT OF TRANSPORTATION Staff Contact: Jim Banks ( ) banksj@chesterfield.gov VIRGINIA DEPARTMENT OF TRANSPORTATION Staff Contact: Brian Lokker ( ) brian.lokker@vdot.virginia.gov UTILITIES Staff Contact: Jamie Bland ( ) blandj@chesterfield.gov This request will have a minimal impact on these facilities. 9 17SN APR26-BOS-RPT

18 CASE HISTORY Applicant Submittals 11/15/2016 Application submitted 4/5/2017 Applicant submitted document relative to coverage design Community Meeting 1/31/2017 Discussion: Review of proposed emergency communications system enhancements and its benefits Increase planned for Robious site from 199 to 310 feet Propose to begin construction in June, with 6-month construction period A repeater is in high school to assist with radio coverage Taller tower needed to connect microwave paths for new system; terrain is an issue in this area System will be looped for reliability Current equipment outdated; system will no longer receive maintenance support Concern property will not become site for multiple towers Room will be available on tower for 4 private communications service providers Concern taller tower will need to lit; discussed lighting per conditions of existing zoning, unless otherwise required by FAA Other sites considered for the tower or other towers so as not to increase the height of the approved tower; existing area towers cannot handle additional load of new equipment Visibility from area homes and from Tuckahoe Plantation Frequency of operation of diesel generators; once a week during normal business hours unless needed for power outage Size of dish antenna Possible shortening of tower with use of repeaters to provide coverage Planning Commission 2/21/2017 Action DEFERRED TO APRIL 18, 2017 ON THEIR OWN MOTION WITH THE APPLICANT S CONSENT. 4/18/2017 IF THE COMMISSION ACTS ON THIS CASE AT THEIR MEETING ON 4/18/2017, IT WILL BE HEARD BY THE BOARD OF SUPERVISORS ON 4/26/2017 The Board of Supervisors on Wednesday, April 26, 2017, beginning at 6:00 p.m., will consider this request SN APR26-BOS-RPT

19 CONDITIONS ATTACHMENT 1 1. With the approval of this request, the Proffered Condition of Case 99SN0158 shall be amended as follows. All other conditions of Case 99SN0158 shall remain in force and effect. The tower shall not exceed a height of 310 feet and shall be located generally as depicted on the Site Location Plan prepared by Pyramid Network Services, LLC., last revised (P) The approved tower shall also be subject to these additional conditions: 2. The tower shall be a self-supporting lattice structure. (P) 3. Any satellite dish and microwave dish antennas attached to the tower shall not exceed eight (8) feet in diameter and shall be of a neutral color with no logos. (P) 4. Prior to use of this telecommunications tower, the owner of the tower shall obtain approval of the structural integrity by a registered professional engineer licensed in Virginia and a copy of the report filed with the Planning Department. The tower shall be certified as structurally sound to accommodate the applicant s equipment and equipment for four (4) additional communication service providers. (P) 11 17SN APR26-BOS-RPT

20 SITE LOCATION PLAN, SITE PLAN AND TOWER ELEVATION ATTACHMENT SN APR26-BOS-RPT

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23 PHOTO SIMULATIONS ATTACHMENT SN APR26-BOS-RPT

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26 CONDITIONS OF CASE 99SN0158 ATTACHMENT SN APR26-BOS-RPT

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29 ATTACHMENT 4 PUBLIC SAFETY RADIO SYSTEM COVERAGE DESIGN AUGMENTATION INQUIRY Chesterfield County Planning Commission / Board of Supervisors Public Safety Radio System Coverage Design Augmentation Inquiry I. Background. Chesterfield County, in conjunction with its Capital Region Partners 1, contracted with Motorola Solutions in June 2016 for a regional public safety radio communications system. The Chesterfield County subsystem includes a 15-site 800 MHz simulcast network 2 to provide radio coverage, new Emergency Communications Center dispatch consoles, as well as the redundant system core electronics that control the operation of the regional radio system. Detailed design activities for the new regional radio system have been ongoing in Chesterfield County and the Capital Region since July A subset of the overall detailed design process involves working closely with the County Planning Commission and Board of Supervisors to optimally locate and define the use of every tower site in the new simulcast network. As part of the tower siting process, the Chesterfield project team has conducted numerous community meetings and informational work sessions with stakeholders to gather information and refine the use of each proposed tower site. II. III. Planning Commission (PC) / Board of Supervisors (BOS) Request. As a result of the PC/BOS oversight process during the detailed design process, the Chesterfield County Planning Commission has expressed an interest in developing a candidate strategy for augmenting 20dB Radio System coverage in a targeted corridor primarily in the Matoaca District (see triangular area in Figure 1 depicted between the existing Grange Hall-Union Branch-NATS tower sites). Candidate Coverage Design Augmentation. Per the contractual 15-site System Design, the target area in question is predicted to reliably provide 12-14dB coverage levels; but in response to the PC/BOS request for a strategy to improve 20dB Radio System coverage in the target area, the Chesterfield project team worked with Motorola Solutions to identify an additional tower location on Beach Road (see Figure 2) that would reasonably address the concerns raised by the PC/BOS to date. Motorola provided a conceptual design coverage model (see Figure 3) using a 300-ft self-supported tower located at Latitude N / Longitude W. The candidate Beach Road tower site location is currently an undeveloped Chesterfield County Parks and Recreation parcel. The Chesterfield project team estimates the total cost of ownership (including design, construction, installation, and maintenance) for this additional site on Beach Road to range between $3.75M-$4.0M in current dollars based on the Motorola Solutions 21 17SN APR26-BOS-RPT

30 contract pricing 3. The Chesterfield project team is recommending that the PC/BOS reserve judgment on whether to pursue an additional simulcast site until after the contractual coverage acceptance test to gauge how much additional coverage is actually needed based on the performance of the implemented system. Upon completion of system we will bring the actual test results back to the PC & BOS for further consideration. Subsequently should the County desire to pursue integration of an additional simulcast site following the execution of the contractual coverage acceptance test (currently planned between May-October 2019), the County should expect a month timetable 4 to fully complete the initiative. 1 Capital Region Partners include Chesterfield County, Colonial Heights, Henrico County, City of Richmond, Hanover County, and the Capital Region Airport Commission (CRAC). 2 One of the 15 sites in the Chesterfield County simulcast network is located on Roslyn Road in Colonial Heights, VA. 3 Chesterfield County and Henrico County provide redundant Zone Core electronics for the new Capital Region Radio System. 4 This is our teams estimate in today s dollars and will be subject to inflation over time, a formal quotation has not been solicited from Motorola. Final pricing will be subject to negotiation with Motorola after determining the county s desired solution. 5 While a contractual schedule has not been solicited from Motorola, the Beach Road site provides a conceptual solution to address the PC/BOS inquiry. Based on the current project schedule, the additional site would come online after the Regional System is operational (anticipated May 2020) SN APR26-BOS-RPT

31 Figure 1. Contractual 15-Site Simulcast Network Design Noting Triangular Target Area for 20dB Coverage Augmentation Figure 2. Candidate 16 th Simulcast Site on Beach Road to Address Request for Targeted 20dB Coverage Augmentation Figure 3. Conceptual 16-Site Simulcast Network Design Addressing Request for Targeted 20dB Coverage Augmentation 23 17SN APR26-BOS-RPT